MEMORANDUM. City Commission. Robert DiSpirito, City Manage~ August 10, Jeff Streder, Interim Finance Director

Transcription

1 *STARRED ITEM* Agenda Item: MEMORANDUM Regular Meeting: OB-1 08/20/2015 TO: THROUGH: DATE: FROM: City Commission Robert DiSpirito, City Manage~ August 10, 2015 Jeff Streder, Interim Finance Director SUBJECT: PRESENTER: RECOMMENDATION: BUDGET IMPACT: PAST ACTION: NEXT ACTION: ATTACHMENTS: Aid to Private Organizations Funding for Pinellas County Safe Harbor Robert DiSpirito, City Manager Jeff Streder, Interim Finance Director Information gained from the discussion will be used to inform and guide staff on the level of funding for Aid to Private Organizations under the City Commission to be included in the proposed 2016 budget, to be adopted on September 3, $10,000 added to, or taken from, the City Commission's Aid to Private Organizations budget. N/A NIA 1. History of City contributions made to Pinellas Safe Harbor 2. from Sheriff Bob Gualtieri dated August 7, Letter from Sheriff Bob Gualtieri, dated July 30, Letter from Sheriff Bob Gualtieri, dated April 28, Mayor's Rick Kriseman & George Cretekos letter, dated January 8, Public Safety Committee Memorandum of Support to Continue Financial Contributions to the Safe Harbor Program dated May 6, National Jail Exchange article focusing on how the existence of Safe Harbor helps relieve jail overcrowding in Pinellas County

2 BACKGROUND: At the June 18, 2015 regular meeting, the Commission approved the format and content for an Aid to Private Organizations Notification Letter and Application Materials Checklist. These were sent out to past recipients of aid and a link containing them posted on the front page of the City's website the very next day. Materials had to be received by the City no later than July 15, The application materials for Pinellas Safe Harbor were mistakenly sent to the actual Safe Harbor address at th Street North, Clearwater, FL as opposed to being delivered to the Pinellas County Sheriff, who acts as the lead in coordinating funding for the effort, opening the door for the Commission to consider an exception in this case. In the spirit of fairness to a longtime partner and given the fact that the Pinellas County Sheriff was unaware of the City's new process, Pinellas Safe Harbor should be given the opportunity to make a case for receiving funding in FY Homelessness is a countywide problem that affects every city throughout Pinellas County. The Pinellas County Sheriff's Office opened Pinellas Safe Harbor in January 2011 in an effort to prevent homeless people who commit minor crimes from being arrested and incarcerated in the County Jail. As a result of this jail diversion program thousands of people have received mental health, substance and alcohol abuse treatment, as well as job and life skills training to help them break the cycle of homelessness and become productive members of our community. There are currently more than 5,000 chronically homeless people living in Pinellas County. But for Safe Harbor, many of them would be in jail. Safe Harbor is a cost-effective and efficient resource for law enforcement officers working in every city throughout the county, including Dunedin. Further, Safe Harbor saves significant taxpayer dollars as it costs $126 per day to house someone in the County Jail and we house people at Safe Harbor for $13 a day-this is direct cost avoidance to the taxpayers. The total cost to operate Safe Harbor annually is approximately $2.2 million. Of that, the Sheriff's Office covers $1.7 million of the total costs but needs help from the cities and other entities to cover the gap in the operating budget. The primary costs to operate Safe Harbor are

3 personnel to staff the facility, including the counselors and case managers who effect the most significant change for these individuals, security, food and general facility maintenance costs. Dunedin's prior contributions, along with those of the other Pinellas County cities, have been used to meet these operating expenses, and FY 2016 funding would be used for the same purposes. While Safe Harbor is a "facility" it is not an independent entity; it is part of the Pinellas County Sheriffs Office so the Sheriff has asked that all future correspondence regarding Safe Harbor be directed to him at the PSCO main office. Only because the process was new for this year were materials sent directly to past funding recipients. Going forward it is not envisioned that the City will be sending out funding request packages. It will be up to the organizations seeking funding to proactively research and meet the City's process deadlines. The Sheriff has indicated he will make arrangements for someone at the PCSO to submit the application within the prescribed process timeframe next year.

4 .. CITY OF DUNEDIN SAFE HARBOR CONTRIBUTIONS ACTUAL ACTUAL ACTUAL ACTUAL BUDGET FY 2011 fy2012 FV2019 FY2014 FY 2015 CONTRIBUTION , , TOTAL $ 10,000 $ 10,000 $ $ $ 10,000 12,000 10,000 r- r 8,000 r- I- 6,000 f , ,000-0 r-- FY2011 FY2012 FY 2013 FY 2014 FY 2015 ACTUAL ACTUAL ACTUAL ACTUAL BUDGET 1/11/1011

5 Streder, Jeff From: Sent: To: Subject: Gualtieri,Robert Friday, August 07, :58 PM Streder, Jeff Pinellas Safe Harbor Funding. Consistent with the correspondence from Mayor Bujalski on August 7, 2015, this is a request for outside entity funding by the City of Dunedin. I understand this request will be considered by the City Commission and there are no assurances that funds are available in the FY 16 budget. Homelessness is a countywide problem that affects every city throughout Pinellas County. The Pinellas County Sherifrs Office opened Pinellas Safe Harbor in January 2011 in an effort to prevent homeless people who commit minor crimes from being arrested and incarcerated in the County Jail. As a result of this jail diversion program thousands of people have received mental health, substance and alcohol abuse treatment, as well as job and life skills training to help them break the cycle ofhomelessness and become productive members of our community. There care urrently more than 5,000 chronically homeless people living in Pinellas County. But for Safe Harbor, many of them would be in jail. Safe Harbor is a cost-effective and efficient resource for law enforcement officers working in every city throughout the county, including Dunedin. Further, Safe Harbor saves significant taxpayer dollars as it costs $126 per day to house someone in the County Jail and we house people at Safe Harbor for $13 a day-this is a direct cost avoidance to the taxpayers. The total cost to operate Safe Harbor annually is approximately $2.2million, the Sheriffs Office pays $1.7 million of the total costs but we need help from the cities and other entities to cover the remainder of the budget. The primary costs to operate Safe Harbor are personnel to staff the facility, including the counselors and case managers who effect the most significant change for these individuals, security, food and general facility maintenance costs. Dunedin's prior contributions, along with those of the other Pinellas County cities, have been used to meet these operating expenses, and FY 16 funding would be used for the same purposes. Thank you for considering funding for Safe Harbor in the FY 16 Dunedin budget. Sheriff Bob Gualtieri Pinellas County Sherift's Office I 0750 Uhnerton Road P.O. Drawer 2500 Largo, Florida Telephone: rgualtieri@pcsonet.com 1

6 Pinellas "leudi11g The Wtt,l' For A Sttj'er Pillf!llas" July 30, 2015 The Honorable Julie Ward Bujalski Mayor, City of Dunedin 542 Main Street Dunedin, FL Dear Mayor Bujalski: I am writing to clarify some confusion over Pinellas Safe Harbor funding requests. When we opened Pinellas Safe Harbor in January 2011 there was an agreement with then St. Petersburg Mayor Bill Foster that he would liaison with the cities in Pinellas County to seek contributions for operating Safe Harbor. Mayor Foster had his staff send letters requesting contributions in subsequent years and many cities contributed, which we greatly appreciated! Upon Mayor Kriseman taking office he agreed to continue being the representative to the cities for Safe Harbor and requesting the annual contributions. Earlier this year you received a joint letter from Mayor Kriseman and Clearwater Mayor George Cretekos requesting a contribution for Safe Harbor operating costs. Some cities responded and the contributions are appreciated. However, we are receiving inquiries from many cities about why they have not received their "Safe Harbor bill from the Sheriffs Office." We do not send "bills" and the "ask" that you received earlier this year from Mayors Kriseman and Cretekos is the 2015 funding request. If this is insufficient and you need something further from us, please let me know and we will fumish what you need. If your city needs an annual "invoice" directly from the Sheriffs Office please let us know and we will make the necessary arrangements so as to avoid any future confusion. We thank you for your partnership and continued support of Pinellas Safe Harbor. Sincerely, Sheriff Bob Gualtieri Pinellas County, Florida BG/jsc cc: Mayor Rick Kriseman Mayor George Cretekos I07.SO Ulmerton Ro;~d P.O. Dnmc-r 2500-l.argo. H (717} hup:ijwww.pcso\\ el'!.com

7 Sheriff Bob Gualtieri County 11 uadlng The Way For A S fer Pinellas" Apri128, 2015 Mayor Julie Ward Bujalski City of Dunedin Post Office Box 1348 Dunedin, FL Dear Mayor Bujalski: We opened Pinellas Safe Harbor on January 6, 2011 to me~t the housing needs of Pinellas County's chronic homeless population and a.~ a cost-effective altentatlve tojail incarceration. Approximately 430 men and women are currently housed at Safe Harbor and are no longer Jiving on our streets. Safe Harbor ha.~ also helped us manage the jall population as urdinance arrest bookings at the Pinellas County Jail have decreased by 44% since Safe Harbor opened. We have made great progress but much work is yet to be done and we need your City's continued support. It is our understanding that the City of Dunedin has committed $10,00() to Safe Harbor for FY15. We thank you for your financial support. Homelessness is a countywide problem that knows no borders and it is something we must all address in partnership. Plesse send your Safe Harbor contribution to Director Susan Krause in our Fiscal Affairs Office. Thank you for your partnership in making Safe Harbor successful and helping us provide necessary services to our citizens. Sheriff Bob Gualtieri Pinellas County, Florida BG/jsc I f_l'l~l\ f!!mertr.m Hrr~d P 0 Onnvet?. ~(10. Ll!f"'" FL 1-:!1...,()

8 January 8, 2015 Robert DeSpirito, City Manager City Municipal Building 750 Milwaukee Avenue Dunedin, FL Dear Mr. DISplrito: Homelessnoss within our communltlca remains a complex and evolving concern teo frequently affecting tho health and safety of our citlzons. As tiunflles and individuals \Vlthin our jurisdictions encounter challenges, we must focus on tho critical safoty net necessary to stabilize and prevent the impacts ofhomolessneas. Locally, we are fortunate to have strong partnerships and proven services in place to help tackle this multifaceted problem. Homeless service providers continue to work hard each day to support and sssist those In need. Through existing homeless shelters end services and Important programs like Pinellas Hope and Sate Harbor we see the value of collaborative solutions within our communities. This year, great stridea have been made in shoring up looal solutions with critical new investments in Turning Point, Pinellas Hope, and St. Vincent De Paul. Along with those Investments, the Juvenile Welfare Board's Family Services Initiative has come together to help align resources to navigate families in need. Most recently, Pinellas County has coordinated with the Department of Health in Pinellas County to help provide regular medical care to Safe Harbor residents to reduce EMS calls and further the wrap around services needed for our most vulnerable populations. Each of thc:~ao strides are Important examplos of the suc<lcas collaboration can bring, however, those sucllcsses become short Jived without the ability to sustain tho very safety net we llrivo to create. Safe Harbor Is a prime example of collabora1ion acros& local government, criminal justice, and social sorvlco. agcnolos working to create a solution to ongoing community cmccms. Cwrcntly, Safe Harbor works to serve roughly 400 homeless individuals each day to help with stablll7.atlon and reduce costs. With over $1.3 million In base operating cosrs, not lnoludlng medical and additional supportivo services, Safe Harbor depends on Investments from partners to sutrtain and tontinue its important work. We have renewed our commitment to the success of Safe Harbor, and now, we are asklng you to do the same. We urge you to discuss your level of commitment with your Council or Commission and to send a positive answer at your earliest convenience. If we can assist In any way, Including providing additional lnfohnatlon, please don't hesitate to let us know. Together we can work to meet the cltallcnges ofhomelessness in our communities. Sincerely, Mayor Rick Kriseman, City of St. Petersburg - q_e.o/tct Mayor George Cretekos, Mayor of Clearwater

9 MEMORANDUM To: City Commission, City of Dunedin From: Chairman Michael Quill, Public Safety Committee Cc: Mayor Julie Ward Bujalski, City Manager Robert DiSpirito, Director Greg Rice Date: May 6, 2015 Re: Memorandum of Support to Continue Financial Contributions to Support the Safe Harbor Program Dear Mayor Julie Ward Bujalski and Commissioners, The Public Safety Committee (PSC) held Its regular monthly meeting on Aprll16, One of the Agenda items that we discussed was the possibility of the City of Dunedin increasing and or continuing financial support for the Homeless Shelter, Safe Harbor. As you know the facility is fully staffed for the Homeless and is an alternative to the County Jail. Furthermore, the Safe Harbor program relieves jail crowding and greatly reduces incarceration costs. The PSC does recommend and support the City Of Dunedin continuing financial contributions to Safe Harbor. The PSC considered two questions; A) What constitutes a fair financial contribution by the City of Dunedin to support Safe Harbor? B) Is Mayor Bujalski's recommendation often Thousand Dollars ($10,000.00)In line with a fair contribution? The PSC reviewed the Tampa Times article calling on cities to increase their conlributions for Safe Harbor. We also reviewed PCSO Lt. Sean McGillen and Chief Deputy Simovich's comprehensive report, "A "Low Demand" Homeless Shelter Relieves Jail Crowding: Pinellas County's Safe Harbor" found in the National Jail Exchange dated We also reviewed the 2014 Point-in-Time report completed each year by the Pinellas County Homeless Coalition. Method: Committee Member Ralph Shenefelt did an excellent job with his power point presentation, which included two PDF spreadsheets. First, Mr. Shenefelt did a comparison based on lhe PCSO article regarding financial contributions, which placed Dunedin mid to low range. Second, Mr. Shenefelt then used the most recent population us Census data and analyzed a suggested contribution of $ based on Dunedin's population. The data analyzed showed that on a population basis, Dunedin falls between Pinellas Park and Tarpon Springs; about 4'h on the list of contributing cities. Therefore, a contribution of at least $1D,OOO.OO is comparably fair and reasonable. Other factors strongly considered are the costs, per day, to house an inmate in the county jail verses Safe Harbor. If a Homeless person Is Incarcerated In Pinellas County Jail, the cost is $ per day verses $13.00 a day at Safe Harbor. The PSC would be glad to present the Power Point Analysis to the City Commission if they so desire. Please find attached. Page 1

10 Conclusion: A motion was made and second by PSC members to support the City of Dunedin contributing $10, each year to the Safe Harbor Homeless Shelter; further supporting Mayor Bujalski's suggestion of a $10, contribution to Safe Harbor. The Motion passed 4 votes with 1 member abstaining. Therefore, the PSC recommends and requests that the Dunedin City Commission approve a $10, contribution each year to support the Safe Harbor Homeless Shelter. The PSC also recommends the following; A) The Safe Harbor yearly Contribution of $10, is budgeted as a line-item In the Fiscal Budget. B) Also consider some type of in-kind service to offset cost if needed. C) Review the 2014 Point-in-Time Homeless report to access Dunedin's Homeless count and need for services. Respectfully Submitted; Electronically signed Michael A. Quill. Chairman PSC Page 2

11 Clly Pot~ (!010 Cenws) 2014 Coe~trlbtltlon Total Contribution 2014 (Pop) Total ContrllluUon (POl)) /loft" Por61.. Rice, OuMdO.?liflnin1 & Oevolapmtnt OlrKtor; "Fedu~l full<llll:llllttdtlt$ ~WerSO.OOOpopulation recen llrol movbend to lund lla,...l"ll~tl"''-lri ~'lid", St. Pere, Cle_lt.,, Lllgo ind tht ((HjfttV IMIJ rtcelvl Cammun;ty Dfltlapmtnt &lod Gulli ICOBG) l<'llml l\lnclinl on nll'lllihi bn~ Tht~tlarltrcibesdo not hno u<e their Ge..erol F nd ~ol~r ll~ Dunodln rio toco~lrilluttto$ift Hrrlxlt.

12 :IINIC National Jail Exchange 2012 N Hol\tll fnstlrute ot (Ott«dOf'lJ Iiiii' Nlill ~ " ' t\,oi lllll.tll ,lt.ll, A ~~Low-Demand" Homeless Shelter Relieves Jail Crowding: Pinellas County's Safe Harbor By /,t. Sean McGillen and Chief Deputy Dan Simovich, Pinellas County Sheriff's Office, and Dr. Robert G. Marbut, jr. Across the United States, jails often function as the largest homeless shelter in their communities, which dramatically exacerbates jail crowding problems. "Low-demand" homeless shelters (also known as "first-step" programs or " courtyards" ) have proved very effective in reducing the number of chronic homeless and serial inebriates in general jail populations. A low-demand homeless shelter can be defined as a program that accepts all non-violent men and women-even if they would not meet the criteria typical of other shelters-and offers them a way off the street. Low-demand shelters give agencies a much more positive enforcement alternative for "quality of life" ordinance violations. They also create major cost savings by avoiding the use of jail beds. Furthermore, when operated with a holistic programming approach, they significantly reduce the recidivism rate of homeless individuals as well as helping them find steady housing. A new first-step homeless shelter in Pinellas County takes this concept a step further. In a partnership with the Florida Department of Corrections, the county's Safe Harbor facility is also used as the first step for prison inmates who are re-entering the community. This article discusses the principles that make low-demand homeless shelters work, tells the story of how the Pinellas County Sheriff's Office established Safe Harbor, and highlights its benefits to the jail and the broader community. Figure 1. Elcternal view of the Pinellas Safe Harbor entry. '' '- l ~ : ) 'I '"... I ;J l' r'lll, II \ I I h

13 ~NIC NaUonal lnstltute of COfrecd ons National jail Exchange! 201_2_ h llp:jinj( ICgii\:N.tt ill tl.tl!t t!l..l il Ill- ' Why Incarcerating Homeless Individuals for Misdetneanors Doesn't Work Criminal justice and correctional officials have struggled for years with how to handle chronically homeless and inebriated individuals. At first glance, it is understandable why mayors, city councils, and city administrators want to jail homeless individuals who are detained on m isdemeanors, yet this approach has proven itself over and over not to work. Incarcerating nonviolent, homeless individuals for quality of life ordinance violations provides only very short-term relief, generally no longer than 6 to 12 hours per arrest. The high number of cases processed, and particularly the high humber of repeat offenders, places the overall criminal justice system and court services under a huge amount of stress. Incarcerating these Individuals overloads the correctional system, increases the jail's operating costs, and takes up needed bed space in often-crowded facilities. Cycling through the jail does nothing to address the root causes of homelessness. Jails are not suited to address the core issues associated with homelessness, such as sleep deprivation, addictive disorders, mental health challenges, job training and placement assistance needs, lack of life skills, and the need for dental health and/or primary medical care. When the underlying core issues of homeless ness are not addressed In an effective manner, the result is a cycling of homeless individuals between jails, emergency rooms, and the streets. Success Factors in the Low-Demand Shelter Model The low-demand shelter model provides a solution that both reduces incarceration in the short term and addresses the root causes of homeless ness for long-term benefit. Communities that have established low-demand shelters have seen significant drops In the number of homeless individuals in j ail. Additionally, well-run low-demand shelters have been able to "graduate" high numbers of individuals off the streets back into society or into better living arrangements. A low-demand shelter has a low threshold for admitting nonviolent, homeless men and women into the program. These individuals are accepted "as they are," without regard for their sobriety. Many aspects of a low-demand shelter may seem counterintuitive at first, but on closer look they are grounded in common sense. To be successful, low-demand shelters should embody five core principles. 1. Shelters should be operated "24/7/365." Round-the-clock operation is essential. Being open only at night as an "overnight emergency shelter" or only during the day as a "dayroom" will not reduce ' ~ I ;.,

14 ~NIC National jail Exchange! 2012 NallonaJ lnuitute ofcortecllons ht tp. /J'\I, il!'" i\.ji i11 a iii 1ill.,lull!.! homelessness-in fact, either one will promote homeless ness. Residents should have access to service programming at all hours and should not be kicked out at an arbitrary time. 2. Entry to the shelter should be as barrier-free as possible. Programs must strive to take in non-violent individuals as they are, not as the provider would like them to be. Open acceptance is critical to success. This means taking in individuals who have been drinking, using drugs, and committing low-level, nonviolent offences. 3. Shelters should be holistically run with the most comprehensive set of services possible. Examples include veteran reintegration programming, domestic violence prevention, job training, job placement, addiction disorder treatment, mental health treatment, provision of primary medical care, and more. Bringing in the broadest possible array of non-profit and faith-based service partners is critical to the program's success. Case managers should be the nexus of all services: they should provide proactive coordination of services to each homeless individual and lead the development and management of individual recovery action plans. The main goal for services is to treat negative behaviors and address other root causes of homelessness on an individual level. 4. The mindset of area agencies needs to move from warehousing the homeless to transformation. Well-run first-step programs embody a culture of engagement, not a culture of enablement. First-step programs must strive to "graduate" off the street a significant percentage of the homeless individuals they serve. 5. low-demand shelters should serve only an adult population. They are best suited for assisting chronically homeless men and women, not families with children. Each shelter's specific goals and target audience should always be customized to fit local needs. Prospects Courtyard: The Antecedent to Pinellas Safe Harbor The largest low-demand shelter in the U.S. is Prospects Courtyard, which is part of the Haven for Hope homeless transformation campus in San Antonio, Texas. The Courtyard sleeps approximately 700 chronically homeless men and women every night. It operates 24/7 and has an entry curfew of 10:00 p.m. Most of the operations of Prospects Courtyard take place outdoors. There are no families with children under the age of 18. Comprehensive services are provided by a wide variety of non-profit, faith-based, and government agencies. Residents benefit from integrated case management, extensive engagement opportunities, mental health screening, medical and dental care, vision care, life skills education, showers and rest rooms, hydration, nutrition, security, and better sleeping conditions than the street. The overall Haven for Hope campus also provides services such as addictive disorder treatment programs and job training. Haven for Hope, Inc., a 501(c)3 nonprofit, coordinates the campus. The Center for Health Care Services, a nonprofit that is the mental health authority for the greater San Antonio area, serves as the lead

15 :iinic National jail Exchange j 2012 NatlonAI Inslltute ol Couecllons service agency. Funding is provided by the City of San Antonio, the State of Texas, the United Way, foundations, businesses, and individual donors. The average per-person cost to operate the Courtyard Is about $19 per day. This represents a major savings compared to the operating cost of about $60 per Inmate-day in the Bexar County Jail. Beyond the savings in housing costs, it is important to note that the program also creates dramatic system cost savings for the courts, the police, and area hospital emergency rooms. Pinellas County's Need for Jail Diversion Pinellas Cou nty, Florida, is located due west of Tampa Bay and has a population of more than 900,000 residents. The county encompasses 24 incorporated cities, including St. Petersburg, Clearwater, and Largo. The county's attractive, mild climate, its numerous parks, and its plethora of services for homeless persons have led to a long history of challenges related to the condition of homelessness. The Tampa Bay metropolitan area has the highest percentage of homeless people in the U.S., at about 57.3 homeless individuals per 10,000 in the general population. The nation's prolonged economic downturn has resulted in a double-digit unemployment rate in Pinellas County. Budget pressures have led to a reduction in government-funded social programs. Both of these factors have contributed to an increase in homelessness and homeless-related issues in our area. As recently as 3 years ago, St. Petersburg's central business district-the heart of the city's business and entertainment center-had hundreds of homeless individuals living and panhandling on the streets. Homeless individuals were sleeping in city parks, on private property, under bridges, and on boats in area marinas. The problem was so severe that around 200 individuals were sleeping on the grounds of City Hall every night. Complaints from citizens and local businesses escalated, and the St. Petersburg Police Department struggled to address the issue. The Pinellas County Sheriff's Office was also affected by the economic turndown. Over the past 5 years, the agency's budget was reduced by $108 million, or about 35%. The reductions resulted in the elimination of 616 positions, sworn and unsworn. A perfect storm was developing-the resources of the jail system were shrinking at the exact time there was a dramatic increase in the number of homeless individuals being incarcerated. And, lacking any better ideas, metro area cities wanted to Incarcerate. even more homeless individuals. Out of necessity, the Pinellas County Sheriff Office Initiated meetings with stakeholders from the judiciary, the Office of the State Attorney, the Office of the Public Defender, and local incorporated cities to look at the inmate jail population more strategically. This dialogue started a conversation about how to reduce the number of nonviolent, homeless individuals in the Pinellas County Jail. A review of the data showed that the number of homeless individuals being charged with "quality of life" ordinance violations was high and dramatically increasing. Misdemeanor arrests for open containers of alcohol and urinating in public were frequent examples. The volume of arrests was further -.., ~ Page 4 ;,,.,,, 11 L,.,

16 :IINIC National jail Exchang:J 2012 Nanonallnsflrute of Cotre<:tlons lillf'.t(i':ici< c: '' \ d!11 11 '-' h.111~ exacerbated by the ever-increasing number of individuals who failed to appear for their court dates. A significant number of homeless individuals were being arrested 20 or more times in a single year for minor offenses. Creating a Safe Harbor Using Prospects Courtyard in San Antonio as a prototype, Pinellas County Sheriff Bob Gualtieri authorized the conversion of a closed jail facility into a low-demand homeless shelter. The shelter was established as a jail diversion program called Pinellas Safe Harbor. In forming the program, Sheriff Gualtieri took the lead in forging relationships with local social service providers, local law enforcement agencies, the state attorney's office, and the public defender's office. The stated purpose of Pinellas Safe Harbor is to divert criminally involved homeless individuals away from being booked into the county jail and into Pinellas Safe Harbor, where they can be connected with specialized services. The Pinellas Safe Harbor building was formerly a minimum-security, direct supervision jail. It required minimal renovation and was a natural fit for the shelter. Safe Harbor is located just outside the secure perimeter of the county's main jail, and it came equipped with restrooms, showers, and some office space. Significant effort was made to soften the environment from the traditional correctional atmosphere. Social service agencies were actively encouraged to partner with Pinellas Safe Harbor. Pinellas Safe Harbor became part of a county-wide coalition of homeless service agencies led by the Pinellas County Homeless Leadership Board. Pinellas Safe Harbor officially opened on January 6, The Harbor has a capacity of470 and averages about 400 men and women residents every day. (It does not accept families with Figure 2. View ofthe Pinellas Safe Harbor dayroom. children u.nder the age of 18.) The Harbor operates 24 hours per day with an entry curfew of 8:00p.m. The majority of the Harbor's operations take place indoors. As a jail diversion program, Pinellas Safe Harbor has admission criteria that are significantly different from those of other homeless shelters in the community, all of which are operated by private nonprofits. Pinellas Safe Harbor does not turn away potential residents if they are under the influence of drugs or alcohol or have a criminal record. This is in vast contrast to other shelters that screen out individuals who are under the influence or who have a history of past criminal behavior. The chronic segment of the homeless population is the most challenging and represents the largest drain on the - Page S F~~-,,L,".1~ r.. irr:1.,. /.,l'.'" llj,,r.. h.l 1,;

17 :i~nic Nallonal Institute of Cou«llons National jail Exchange! 2012 resources of the criminal justice system and correctional communities. It is important that the county get these people off the street and into services so they can be kept out of ja il. Pinellas Safe Harbor is the largest shelter in the county and is the only government-operated shelter in the area. Compared to Prospects Courtyard in San Antonio, Pinellas Safe Harbor has significantly more formal operational ties to the law enforcement and correctional communities. The Pinellas County Sheriff Office continues to be the coordinating lead agency and to date has provided the majority of the funding. Some support has come from municipalities and the county proper. Efforts are underway to increase funding from local municipalities and businesses. Services are provided by the Pinellas Sheriff's Office, the Public Defender's Office, Directions for Living (a local mental health authority), Tampa Bay Metropolitan Ministries, and several other agencies. A number of social service partners have embedded their case workers at Pinellas Safe Harbor. "Master" case managers, who are Sheriff's Office employees, coordinate services for individuals and facilitate educational and therapeutic classes and services each day. Safe Harbor provides case management, mental health screening, addictive disorder programs, basic medical care, job training and placement, life skills education, showers, hydration, nutrition, security, and other services, as well as giving people a better place to sleep. Many formal classes and programs also are offered, such as NA/AA, mental health awareness, independent living, resume writing, and job interviewing skills. Figure 2. View of a sleeping area with pallets, Pinellas Safe Harbor. Notice to Appear Diversion Process A critical success factor for Pinellas Safe Harbor has been the creation of a Notice to Appear diversion process. In partnership with the Sheriff's Office and local police agencies, Pinellas County Public Defender Bob Dillinger and the State Attorney's Office created a detailed process for the disposition of charges related to misdemeanors and quality of life ordinance violations.loca l law enforcement agencies were then educated on the goal of diverting homeless individuals into Pinellas Safe Harbor in lieu of the county jail. Under the new process, when a law enforcement officer comes in contact with an individual who may be violating a quality of life ordinance or perpetrating a general misdemeanor, the officer's goal is to secure the individual's voluntary admission into Pinellas Safe Harbor. The individual may be arrested through normal protocols if he or she does not agree to a voluntary admission. Instead of moving

18 -~_..!?_:_~_ ~_!_'~-~~o" ' N_a_t_io_n_a_I _J~, I Exchange l 2012 h!i p. ' Nil I ( >-:' 11 / N.IIHIII tlllill..., I L I/ I~. quickly to arrest, however, the officer will continue to engage the person and explain the benefits of going to Pinellas Safe Harbor as opposed to the county jail. If the person ultimately agrees to seek services at Pinellas Safe Harbor, the officer will transport the individual t here and give him or her a Notice to Appear rather than delivering the individual to the jail for booking. A staff member from the Public Defender's Office meets with the individual the following day. As a result of the meeting, a mental health evaluation, a substance abuse evaluation, or a community service assignment is recommended. If the individual is successful in completing his or her assigned requirements, the "Notice to Appear" charge is satisfied without further court hearings, and there will be no future sanctions. Service Coordination Through Master Case Managers Extensive master case management services are made available to every Pinellas Safe Harbor resident, with the goal of engaging individuals into customized program services. Pinellas Safe Harbor has 10 fulltime case managers who work under one supervisor. Seven of the case managers are considered to be "master" case managers. Master case management has proven to be the most valuable component of the program and has greatly reduced the cyclical pattern of chronic homelessness and involvement in the criminal justice system. Master case managers have successfully placed hundreds of individuals into better living arrangements, and many more clients have "graduated" from the streets. Safe Harbor as a Reentry Portal Pinellas Safe Harbor has also partnered with the Florida Department of Correct ions to serve as a formal reentry portal for inmates being released from state prison. Pinellas County currently receives approximately 2,500 inmates each year who are returning from prison to the community. All inmates who are participants in the state's reentry program and will be released in Pinellas County are brought to Pinellas Safe Harbor at the conclusion of their sentence. Those who have lost touch with family or friends and have no residence are provided a bed at Pinellas Safe Harbor until such time as they are independent. Each returning inmate is connected with a master case manager, evaluated for needed services, and given assistance in reintegrating back into society. In the past, state inmates were returned to their home counties with only a bus pass and a small amount of money. Results to Date In 2011, Pinellas Safe Harbor served 3,950 unique individuals. This population included 591 U.S. military veterans, 648 residents processed under the Notice to Appear diversion system, and 104 inmates processed through the reentry portal during the last 6 months of the year. The average per-person cost to run the Pinellas Safe Harbor is $13 per day, which is a major cost savings compared to the $106 average daily cost per inmate to run the Pinellas County Jail.

19 :i1nic National jail Exchange! 2012 N HoNJ tmllrutc: of Corr«Uons fiji jl.f / :\1( I{ >.; II, C\ I t IIIIo tl l 111i \1 it Ill,, Diverting chronically homeless individuals from the county jail to the low-demand shelter has become a win-win-win scenario for Pinellas County, its residents, and its homeless population. Pinellas Safe Harbor has provided significant relief to the overall criminal justice and correctional systems, it has helped to reduce the street-homeless population in the county, and it has provided a more constructive environment to assist homeless individuals in regaining their independence. Conclusion The use of a low-demand homeless shelter can provide an effective jail diversion program by reducing the number of chronically homeless persons and serial inebriates in the general jail population. This creates major cost savings in the overall criminal justice and social service systems. Beyond these immediate operating cost savings, a low-demand homeless shelter also can dramatically reduce the pressures of jail crowding. A "first-step" program also can provide a more positive enforcement alternative for quality of life ordinance violations. Holistically operated programs can reduce the recidivism rate of homeless individuals. The vast majority of homeless individuals function significantly better in first-step programs than in jail. By implementing first-step programs, communities will be able to effectively lower jail operating costs and reduce the homeless population within the correctional system while offering new hope for homeless persons to become contributing members of our society. About the Authors Lt. Sean McGillen Lt. McGillen has been Pinellas Safe Harbor's commander since its inception. McGillen has served as a member of the Pinellas County Sheriff's Office for 20 years and held various positions in such areas as Accreditation, Internal Affairs, Juvenile Boot Camp, Correctional Response Team, and Honor Guard. He received the ASIS International Meritorious Award and the Clearwater Bar Gold Badge Award for his work at the Pinellas Safe Harbor homeless shelter. McGillen is a Graduate of the Florida Criminal Justice Executive Institute and has a Bachelor's Degree in Organizational Leadership. Robert G. Marbut Jr., Ph.D. Dr. Marbut is national expert on homeless issues and manages Marbut Consulting. Or. Marbut was the founding President/CEO of Haven for Hope and has been an advisor to Pinellas Safe Harbor since its inception. He also served as a White House Fellow to President George H.W. Bush, as the Mayor Pro Tem of San Antonio, Texas, and as chief of staff to San Antonio Mayor Henry Cisneros. He has a Ph.D. ~~~Bl-;.-.---, --. -~ -, --. -c ,---;,--1 -., ~-~~

20 :I;NIC Ni llonai fns llture ol Coue<clons National jail Exchange hup. NIL II >:"1 \.IIIIIILdi ull "h.111., from the University of Texas and Master's degree in Criminal Justice from the Claremont Graduate School. Dan Simovich, Chief Deputy Chief Deputy Dan Simovich has been a member of the Pinellas County Sheriff's Office since 1979 and has served in a wide variety of operational components. As Chief Deputy he is responsible for the daily operations at the Sheriff's Office ($200 million budget, 2,700 employees, and 3,000 inmates). Simovich has a Bachelor's degree and is also a graduate of the FBI National Academy and the Florida Criminal Justice Executive Institute. Please contact us at: Lt. Sean McGillen smcgillen@pcsonet.com Dr. Robert Marbut marbutr@aol.com Chief Deputy Dan Simovich dsimovich@pcsonet.com For More Information Pinellas Safe Harbor / Haven for Hope and Prospects Courtyard / ntonio.gov I com min it/homelesshavenforhope.as px

21 ~NIC National jail Exchange l z~ 2 Nallonal ln n ltute of Corrections htt p 'i i'ill'll ~ '" 'N tl ipii dltli l.< lt.ttl!~ Document available at: /community.nicic.gov/blogs/nationaljail_exchange/archive/2012/ 10/25/ a-low-demandhomeless-shelter-relieves-jail-crowding-pinellas-county-s-safe-harbor.aspx file Notrunol Juri fxcl1un~w r> nn onyottly electronic journal f ocusing on provtdllhj infornwltun t.; 1 II ~ procrilioners ond r'> C.f10II\OrPd /Jy the Notl(lnai Institute of Correclions (NIC). The con tr>n to; of the onrcles the points of view expressed by the authors. and cornments posted in reaction to t ije or/ irles do no/ necesc.orrlv reflect tijp of(iciol vret\'5 or po/tcres of the 1\/otionnl /n st it ute of C Nrectinn~ I o write on orticle or to learn more al;out the Notional Jail Exchange, visrt t he h o n~ep oqe for tills JO(I(nol nt htt,r> //NICIC gov/ Nnt..-Jnollu,/Fv, lwn(je